The City of Norwalk, Connecticut is a diverse community located in mid-Fairfield County, along Long Island Sound, approximately forty miles northeast of New York City. The population is 78,331; making it the sixth largest city in the State of Connecticut. Norwalk covers an area of approximately twenty-two square miles.
The Norwalk metropolitan area includes the towns of Westport, Weston, and Wilton and has an area median income of $70,700; the second highest in the country. These suburban communities rely on Norwalk to provide a wide range of services including affordable housing and social support services for low and moderate income persons.
Both the proximity to New York City and its location in Fairfield County impact Norwalk's economic and social environment; including in particular, the cost of housing. The cost of living which notably high in the area affects people's ability to pay for housing. In addition, the region is in the midst of a slow recovery to a severe recession which resulted in the loss of thousands of jobs. The diversity of Norwalk's economy, its location, the quality of the workforce and its relative affordability in the county, however, make it an attractive location for both businesses and families.
The City of Norwalk Consolidated Plan outlines a strategic plan for providing decent housing, a suitable living environment and expansion of economic opportunities for primarily low income people in the city through a comprehensive approach that involves coordination and targeting of resources toward activities that address the needs of this group, particularly in the South Norwalk area. It includes a One-Year Action Plan for spending $1,450,570 of Community Development Block Grant funds in 1995. These funds will be spent primarily on residential rehabilitation, public facilities and improvements, a variety of public services and home ownership assistance.
The Norwalk Redevelopment Agency was the lead agency designated for overseeing the development of the Consolidated Plan. The plan was developed fully in accordance with the Citizen Participation Plan approved by the city.
Extensive effort was given to providing a wide variety of agencies, groups, organizations, low income residents, public housing residents, the homeless, social service agencies and other entities with information about and access to the Consolidated Plan, its purpose, process and significance. The development of the Consolidated Plan adhered to a schedule that was widely distributed to interested parties. The schedule delineated the stages of the process and the dates and purpose of the public hearings. Several newspaper articles were printed in The Hour prior to and after the public hearings. In order to broaden public participation meetings were held in South Norwalk at public housing community rooms and at social service agencies. In addition residents of the shelter and local soup kitchen were consulted informally.
The Consolidated Plan was approved on April 11, 1995 by the Norwalk Common
Council following three public hearings, a 30-day public comment period and
approval by the Norwalk Housing Partnership and the Planning Committee of the
Common Council.
Norwalk is a city of diverse and distinct neighborhoods. In fact, South Norwalk and Norwalk were separately incorporated until 1913. Although it is the sixth largest city in the state and has significant industrial and commercial developments, it also has very rural and historical residential areas. Most multi-family housing is in buildings with fewer than 8 units and the rate of home ownership is 62%.
According to 1990 census figures, Norwalk's population is 78,331, an increase of 564 persons since 1980. This modest increase does not reflect the significant increase in racial diversity experienced during the decade. While the white population declined slightly it still retains a substantial majority at 79% of the population. The black population showed the greatest numerical change, increasing from 10,662 persons in 1980 to 11,681 in 1990. The Hispanic population grew by 62% increasing from 4,521 in 1980 to 7,339 persons in 1990. While growth in minority population groups occurred throughout the city, with every tract registering an increased percentage of minorities, certain tracts continue to have a greater proportion of minorities.
Norwalk's median family income more than doubled over the decade rising from
$25,479 in 1979 to $55,269 in 1990. Norwalk's poverty rate declined from 6.9%
of the population in 1980 to 5.2% in 1990. Although Norwalk's median income is
very high, there is great disparity among census tracts. Furthermore, the
city's median income is significantly lower than the surrounding communities.
The cost of housing in Norwalk is the primary difficulty faced by low-income people in finding decent, affordable housing, regardless of family size, race or other factors. Housing is not affordable to low income people in Norwalk, particularly those who face additional obstacles such as addiction, AIDS, and other special needs. There is an over-concentration of low-income and minority people in South Norwalk who are experiencing a wide range of serious problems, including high incidence of crime, unemployment, and low educational attainment. Also, the level and perception of crime in South Norwalk has been an impediment to revitalization of that area and seriously impacts the quality of life of the residents.
Generally speaking, all target groups are most affected by the cost of housing in Norwalk.The three most significant housing needs in Norwalk are to increase the supply of affordable housing, preserve the existing stock of housing and to provide housing for special needs populations. The most cost-effective way of increasing the supply of affordable housing in Norwalk is through increasing housing subsidies through programs like Section 8 and Home ownership Assistance Programs. In order to preserve existing stock, housing rehabilitation programs must continue to be funded to the greatest extent possible. The development of transitional and permanent supportive housing will require funding from a variety of sources as well as an increase in community support.
Norwalk provides a wide diversity of housing choices, ranging from multifamily apartments and condominiums to million dollar waterfront estates. Housing in Norwalk is comparatively affordable relative to other communities in Fairfield County, but on a national basis it is considered extremely high.
Norwalk's housing supply increased by 2,776 units over the last decade to 32,224 units, with a 5.7% increase in single-family units versus a 23% increase in multifamily units. The city's housing stock is almost evenly split between single family and multifamily units and 75% of the housing stock is in one to four family structures, typical of Norwalk's older neighborhoods. The median cost of housing increased by 168% in the last decade, rising from $90,100 in 1980 to $241,300 in 1990. Similarly, the cost of rental housing rose 146% since 1980, increasing from $263 per month to $647 per month in 1990. These increases outstripped the rise in family income during the decade which rose 117%.
The areas of racial minority and low-income concentrations closely parallel one another. While the minority population citywide is 21.1%, in South Norwalk it is 75%. The median income in South Norwalk is roughly one-half the city-wide median income. The percent below the poverty line in South Norwalk is 20.3% compared with a 3.8% citywide.
Census data indicated that there are 7,939 low income households in Norwalk but only 6,457 units available that are affordable for this group. This results in a shortage of 1,482 units. There are 2,080 households on the Section 8 waiting list. Census data also indicate that there is a mismatch between the size of available units and renter population needs. While 52% of the renter population needs three or more bedroom units, only 16% of the vacant units are that size.
The availability of ownership housing affordable to households in the very-low, other low and moderate income categories is extremely limited. The 1990 inventory of 19,722 ownership occupied households had a median value of $241,300 which is not affordable to the many households earning less than the median income of $55,269. Nearly 30% of all owner households have a housing problem; due to either a cost burden, a physical defect, or overcrowding. In fact, 96% of those with a housing problem indicated that it was due to a cost burden. The rate of home ownership in South Norwalk (24%) and among minority groups (32%) is significantly less than the 62% city-wide rate.
The shortage of affordable housing leading to unstable doubling-up situations, as well as the de-institutionalization of mentally ill adults has led to increases in the number of homeless people in Norwalk. In 1993 580 different persons were served by the Norwalk shelter. There are at least 400 households which are doubled-up and at risk of becoming homeless. Transitional and permanent housing for the homeless along with supportive services to maintain them in housing are needed. Eviction prevention funding to assist those in danger of becoming homeless is also needed. All subgroups of the homeless and those in danger of becoming homeless are in need of additional case management and support services which will be difficult to provide given shrinking state resources.
There are a total of 3,180 publicly assisted low and moderate income units in Norwalk. This consists of 1,133 public rental housing units; including 337 units for the elderly. There are 1,231 units of subsidized housing which includes private developments and Section 8 housing of which there are 418 units are for the elderly and disabled. Finally there are 293 nonprofit housing affordable units and 463 units funded through CHFA mortgages.
The greatest public housing needs are to increase the availability of Section 8 certificates in order to increase the supply of units (the waiting list is 2,080) and to reduce the over- concentration of minorities and low-income people in South Norwalk. In addition, there are two large public housing complexes, Roodner Court and Monterey Village, which would benefit from a reconfiguration and reduction in units as well as crime reduction measures.
There are a number of factors that impede the development of affordable housing in Norwalk. The most significant is the high cost of acquisition and construction. Another factor is zoning barriers and building code restrictions which impact the availability of accessory apartment and special needs housing. In contrast there are several significant factors created by market conditions which promote affordable ownership housing development. Specifically, the reduction in the cost of development due to the economic climate, the availability of low interest rate mortgages, and the growth of limited equity co-op housing as an alternative form of home ownership have made ownership more accessible to low and moderate income people.
There are six barriers to fair housing that were identified: (1) prejudice based upon race, source of income, age, marital status, children and disabilities; (2) exclusionary zoning which effectively discriminates against low income or handicapped households accessing safe and affordable housing; (3)high property values; (4)inadequate public assistance allowances which have a disproportionately adverse effect on the residents of high cost areas; (5) concentration of violent and drug-related crimes in low-income multi-family communities; and (6) discrimination in lending.
A large percentage of the housing stock in Norwalk may contain lead-based paint hazards due to its age. This problem needs to be addressed aggressively not only to meet federal standards, but also the most strict Connecticut regulations.
The City of Norwalk recognizes that while meeting housing needs are
important to providing a suitable living environment for its residents, other
factors are also vitally important to achieving this goal. Public
infrastructure improvements, particularly in South Norwalk and on Main and Wall
Street areas need to continue to be addressed. Public facilities, particularly
which provide services for low-income people, need to continue to be improved.
Public services which meet the needs of low and moderate income residents with
day care, substance abuse treatment and after-school programs are needed. The
expansion of job opportunities through training programs and the availability of
capital is a high priority among low-income city residents. Finally, crime in
South Norwalk, particularly at Roodner Court and Monterey Village needs to be
addressed.
The primary goal for housing and community development for the City of Norwalk from 1995- 2000 is to provide decent housing, a suitable living environment and expand economic opportunities primarily for low income people in the City of Norwalk through a comprehensive approach that involves coordination and targeting of resources toward activities that address the needs of this group, particularly in the South Norwalk area.
There are three components to the primary goal for housing and community development:
To increase the number of rental units through utilization of abandoned or blighted properties.
To fund and promote unconventional mortgage assistance programs.
To promote the development of alternative living facilities which address the housing needs of the homeless or special needs populations.
To promote improvement in the living environment at Monterey Village through assisting in the development of funding options and coordination of a strategy to effect the improvements.
To ensure that support services are available to low-income people who need assistance in order to work, provide for the education of their children and cope with other stresses their environment imposes.
To provide a continuum of care including housing and services for the homeless and other people with special needs.
To fund infrastructure improvements and public facility projects which enhance the living environment.
To promote the availability of capital available to low-income residents through support of the Community Economic Development Fund of Norwalk.
To support the availability of education and training programs which lead to employment in jobs that provide a living wage.
To support the activities of the Norwalk Redevelopment Agency and the Enterprise Review Board in increasing private investment in Norwalk, particularly in South Norwalk.
To promote the attraction of new business and the retention of existing businesses in Norwalk.
The Housing Strategies reflect the challenges posed by the high cost of housing in Norwalk. High priority is assigned to addressing the cost burden of both small and large family renters. The primary focus is to be through rental subsidies. High priority is also given to expanding housing options available to provide a continuum of care for the homeless. The community has clearly articulated the need for transitional housing for several special needs populations, such as battered women and substance abusers. Permanent supportive housing is also needed for special needs persons who will require services on an ongoing basis. Medium priority is given to the ongoing process of addressing physical defects in housing. Residential rehabilitation and code enforcement programs are expected to improve approximately 100 units annually.
Highest non-housing community development priority is given to those elements that were articulated by low-income and minority residents. These include addressing the economic development and public safety issues at public housing and other South Norwalk locations. High priority is also given to re-configuring the units and reducing the number of units at Roodner Court and Monterey Village.
Both the renewed focus on the Enterprise Zone and the priorities of the Consolidated Plan are targeted to addressing the multi-dimensional needs of very-low income Norwalk residents. Federal, state and local resources are carefully being targeted to those activities that will promote an improvement in the economic and social status of the city's most needy populations.
The Community Development Block Grant continues to provide the most significant contribution in resources to housing and community development activities in Norwalk on an annual basis. The city has also benefitted from Shelter Plus Care and the Low Income Housing Tax Credit programs. In addition the City of Norwalk has contributed significantly toward infrastructure improvements, home ownership assistance and acquisition programs. The State of Connecticut Land Bank/Land Trust program has enabled several projects to go forward and its Congregate Housing for the Elderly Program has also funded projects in Norwalk. The city also continues to receive significant state funding for crime prevention activities. State funding for housing at this time is in jeopardy due to cut backs and reorganization.
The strategy for coordinating implementation of the Consolidated Plan is to
use the priorities articulated in the plan as the basis for funding decisions
not only for federal funds but also for state, local, and private funding. The
city also intends to coordinate the activity of the City Grant Agency process
with the Community Development Block Grant process. Finally, the city also will
continue to involve a broad base of community agencies and residents in a review
of the community development and housing goals, objectives and strategies.
The City of Norwalk Action Plan describes the activities that will be undertaken during FY95 with the $1,450,570 Community Development Block Grant funds expected to be available during the year. These funds primarily will be spent on housing and support services as outlined below:
Most of the programs funded by the Community Development Block Grant Program are available on a city-wide basis. Exceptions to this include those public service programs mentioned above, site-specific facility improvements, the Security Enhancement Program, and the Neighborhood Housing Services target areas.
A total of 233 households are expected to be assisted with housing during FY 1995 with Community Development Block Grant funding. The Affordable Housing Search/Security Enhancement Program will assist 40 households, 60 households will be assisted with the improvements at Senior Court and 123 households will be assisted with the various rehabilitation programs. An additional 10 households are expected to be assisted by the Home ownership Assistance Program.
MAP 2 depicts points of interest and low-moderate income areas.
MAP 3 depicts points of interest, low-moderate income areas, and minority concentration levels.
MAP 4 depicts points of interest, low-moderate income areas, and unemployment levels.
MAP 5 depicts points of interest, low-moderate income areas, unemployment levels, and proposed HUD funded projects; in addition: a table provides information about the project(s).
